



m 



LIBRARY OF CONGRESS 



021 140 419 A 



7 

■\ D 658 

.M5 05 
1919 
Copy 1 



RECONSTRUCTION IN MICHIGAN. 



I 



Lansing, Michigan, March 11, 1919. 
To His Excellency, 

Albert E. Sleefek, 

Governor of Michigan. 

Sir: — The Michigan Reconstruction Committee, apjjointed by you with 
instructions to prepare a general survey of reconstruction problems in Mich- 
igan, for the information of the Reconstruction Conference of members of 
the county war preparedness boards and women's committees, has the honor 
to submit the accompanying report. 

Very respectfully, 

Stuart H. Perry, Chairman. 

Mrs. G. Edgar Allen, 

Mrs. D. D. Ashbaugh, 

Charles H. Bender, 

John W. Blodgett, 

Mrs. Florence I. Bulson, 

Mrs. Frances Burns, 

W. T. Culver, 

Mrs. Caroline Bartlett Crane, 

J. M. Eaton, 

Rt. Rev. M. J. Gallagher, 

Claude T. Hamilton, 

Mrs. Burritt Hamilton, 

Mrs. Clav H. Hollister, 

N. P. Hull, 

Mrs. H. B. Joy, 

W. S. Linton, 

Miss Alice McDuflfy, 

Mark T. McKee, 

Hon. Charles B. Scully, 

Grant Slocum, 

Otto E. Sovereign, 

Mrs. W. J. Uren, 

Rt. Rev. Charles D. Williams, 

Hon. Carl Young. 



n. of D. 

SEP 4 1919 






REPORT OF THE MICHIGAN RECONSTRUCTION COMMITTEE', 

Peace has brought aboiU a cessation of many of the activities of Michigan's 
war organization, but at the same time it has raised many new prol:)lems of 
the most vital importance, touching tlie economic, pohtical and social con- 
ditions in the state and nation. Tliese prol)lems which are covered bj^ the 
general term "reconstruction," must t)e met and solved if the safety, 
prosperity and contentment of our people are to be safeguarded. Some of 
those problems are urgent and demand immediate action; others demand 
a sound and far-seeing policy designed to meet future developments. All 
alike should be approached courageously, with a broad view and an un— 
prejudicetl spirit. 

In order to deal adecpiatelj- with the questions affecting Michigan, Governor 
Sleeper has called the first Reconsti'uction Conference of state and county 
war workers. Preliminary to this Conference, and as an aid to its work, 
he created this committee ^dth instructions to make a general survey of the 
various problems of reconstruction, and to embody its conclusions in a report 
to the Conference. 

Immediately upon the appointment of the committee, the chairman 
conferred at Washington with officials of the National Council of Defense 
and obtained whatever information was available from various other sources 
regarding the work in hand, and regarding similar activities in other states. 
The various reconstruction topics were assigned to twelve subcommittees, 
for more detailed investigation. The reports of these subcommittees, whose 
work was done with noteworthy ability and earnestness, were collated 
and approved by the full committee, and form the basis of this report. 

Realizing that its functions are only ancillary to those of the Conference, 
and being unable through lack of time to treat its subject exhaustively, this 
committee has confined itself, in the main, to a general consideration of the 
subject. At the same time, however, the committee has recognized the 
usefulness to the Conference of definite proposals and suggestions touching 
some of the more vital and immediate problems, and to that end it has made- 
certain specific recommendations which might serve as a basis for action. 

The broader aspects of the subject, however, are no less important than 
the specific matters upon which immediate action may be taken; for we must 
visualize the whole problem, in all its breadth and depth, before we can 
realize its profound importance, and appreciate the necessity of making 
prompt anci effective efforts to solve it. 

RECONSTRUCTION. 

What is recon.struction? The term is not used bj' all speakers with the 
same meaning, and sometimes it is applied in a sense ciuite at variance with 
its proper significance. The term reconstruction, in its proper acceptation, 
applies to those changes and innovations that represent an actual transfor- 
mation of previous ideals, principles, policies or methods — in other words 



radical and basic reforms that have become necessar,y in the light of ex- 
perience during the last fovn' years. 

Reconstruction means much more than readjustment, and when a sjieaker re- 
fers to a problem of reconstruction as a mere matter of readjustment, it means 
that he is not yet in ste]) with the march of events, and that his eyes are not 
yet open to the new light. For example, the liciuidation of war contracts, 
the proper disposal of accumulatetl stores by the government, or the restora- 
tion of civil rights temporarily aljridged, are matters of readjustment. But 
such matters as Americanization, permanent community organization, and 
the reeogiiition antl establishment of the just rights of labor, are problems 
of reconstruction. These are more tlian mere matters of readjustment; 
they go deeper, touching the very foundations of our polity. They are not 
temporary prolilems, arising out of war conditions and destined to disappear 
■when peace conditions are restored; thej- are permanent problems — jjroblems 
that have been latent for years, but to which our eyes have only just been 
opened — ^^jroblems that will continue, regardless of war or peace, to call 
more and more insistently for an answer. 

It is vital that we approach the whole subject with a proper orientation. 
To deal with the issues of 1919 from the ^'iew point of 1913 means failure. 
If the last four years have left us in the same mental rut, the C|uestions of 
the futiu-e vnW not be answered by us, but by others without our aid anil in 
spite of us. A Avorld-wide revolution has taken place in ideals as well as in 
actiial conditions. We must pull with the new ^current of forces now at 
work, or we shall he swept along helplessly. 

Of the great principles thus revealed to us, three stand out with especial 
clearness to guide us in reconstruction policies: — first, Justice; we must 
give human welfare precedence over mere profits and vested interests — 
second, Safety; we must reclaim those elements that have become dangerous 
to society through ignorance or poverty — third. Efficiency; we must promote 
more economical and effective action of all kinds in order that the people 
may realize the maximum results from their resources and their efforts. 

PROBLEMS OF JUSTICE. 

The first principle, that of Justice, is the greatest lesson of the war and the 
hardest for some of us to learn. The habit of gauging every policy t)y its 
probable effect upon "business," and by that alone, is a thing of the past and 
those of us who cling to it are tempting Proxidence. 

In Russia a combination of political and economic despotism brought 
about a devastating exjilosion of Bolshevism. In this country there is no 
oppressive ijolitical condition, yet that fact has not given us immunity from 
danger; the explosion in Russia has had its repercussion here in the form of 
various and widespread radical movements which are .causing no small 
anxiety. 

This result is not fortuitous and causeless, nor can the cause be ascribed 
wholly to alien agitators. Agitation cannot sow its seeds except in the 
soil of discontent. Therefore the dangerous radical agitation in this country 
points clearly to the existence of some measure of social and economic in- 
justice, and its seriousness and duration rlepend precisely upon how such 
injustice can be removed. \ 

Bolshevism of the Russian type — which aims to establish forcibly a dictator- 
ship of the proletariat — is not our greatest danger. The typical Bolshevik 
and I. W. W. elements in this country are a small and well defined minority, 



which can and must be suppressed by force, and they are led in large measure 
by aliens whom we can get rid of by deportation. But we can neither sup- 
press nor deport the large and growing element that seeks radical changes 
through the forms of law. This latter element is in the long run much more 
important, and it will grow in numbers and in aggressiveness exactly in 
proportion to the blindness and obstinacy of the conservative interests. 
It is not sufficient for conservatism to relinquish only what is untenable, 
or to yield a point here and there to jiurchase temporary peace; there must 
be a genuine awakening and a sincere recognition of the principle that human 
welfare is both a matter of moral right and essential to tlie security of society. 

PROBLEMS OF SAFETY. 

The second great revelation of the war, the problem of social security" 
is in a measure a corollary of the first. An astounding percentage of our 
people is illiterate, foreign-speaking, or both. Eight and a half million 
persons over ten years of age cannot read English, and five and a half millions 
cannot read anything in any language. Of the first million and a half 
drafted men examined 24.9 per cent were classed as illiterate, and even at 
Camp Custer where, the standard of education was relatively high with 
only 9.9 per cent negroes, out of 54,354 men examined 10,004 men, or 18.4 
per cent, were found unable to read and write. The presence of such a mass 
of ignorance in our citizenship not only vitiates the result of the ballot box,. 
but offers an ideal culture for the germs of every sort of destructive doctrine. 
Moreover, it represents an enormous loss in efficiency and earning power. 

There also is a very numerous element in oiu- population that is socially 
dangerous, as well as inefficient, because of its stanrlard of living. Just as 
ignorance produces poverty, so poverty produces ignorance by curtailing 
opportunities both for schooling and self-instruction. But aside from the 
standpoint of intelligence, the ill-conditioned worker is a positive source 
of social danger. His spirit is naturally one of discontent coupled with a 
consciousness of injustice which readily turns into an attitude of revolt 
against the existing order. 

Obviously the sole remedy for such conditions lies in raising up the sub- 
merged elements of society to a level where they vAW cease to be a source of 
danger to the State, whether their status be the product of ignorance, alienage 
or poverty. This remedy may be found in proper policies for education 
and Americanization, and a better adjustment of industrial relations. 

PROBLEMS OF EFFICIENCY. 

The third lesson brought home to us by the war — efficiency — involves 
a wide variety of matters, some of which have been touched upon in the 
report of this committee. The conduct of the war, by making a sudden 
and unparalleled demantl upon our al>ilities and resources, brought home to 
us the importance of maximinn efficiency in ail l>ranches of activity. Under 
this stimulus the American people reacted in a manner that was a revelation, 
not only to our enemy l,ut to ourseh'es. New methods w'ere found, old 
standards were raised, waste was stopped, and at the same time we con- 
ceived new- ideals of what Ave could and ought to do. An alert and patriotic 
people will not slip back and give up the ground thus gained, but will make 
every effort, tln-ough organized endeavor and governmental policies, to- 
apply and extend the principles of efficiency in every possible direction. 



While this process is, in manj' of its phases, a process merely of readjust- 
ment, it also involves radical changes of policy and method that justif}^ the 
term reconstruction. For example, the comprehensive development of 
motor transportation is revolutionary in its nature and boundless in its 
possibilities. Such matters as the reclamation of land, the encoiu-agement 
of agriculture, fire prevention, thrift and food conservation are now viewed 
in such a light as to make them appear almost as new policies. Cognate to 
the genera! su))ject of efficiency also may be classed such matters as marketing 
and distriI)ution, improved business methods, more and better housing for 
"workers, the reduction of unemployment by bringing workers and jobs 
together, public health, child welfare, and most important of all, community 
organization. , 

EMERGENCY PROBLEMS. 

While all the issues of readjustment are of immediate as well as ultimate 
concern, some matters will come before the Conference that are in the nature 
of emergencies, in that they will demand immediate attention looking to 
such action as can be had. 

One matter of supreme importance is to provide for a permanent state- 
Tvide organization to deal with civic problems, both independently and in 
connection with existing state otficial agencies. Both the form and the 
fmietions of such an organization are suggested by the present State War 
Preparedness Board ^vith its county branches. This war machine, which 
has proved so efficient and has mobilized so much patriotic effort, has become 
a great asset to the State which must be conserved and perpetuated for the 
welfare of the State in time of peace. 

Another group of problems of urgent and immediate concern relates to 
the welfare of men discharged from the national service, and the conditions 
in the field of industry caused by the war and by their return to civil life. 
This subject presents various phases Avhich will lie treated under the proper 
heads. 

ORGANIZATION. 

A condition precedent to any broad and efficient program of reconstruc- 
tion is the existence of an organization State-wide in scope, intimately in 
contact with the people everywhere, but with a proper measure of central 
supervision. It should comprise State, county and community organiza- 
tions, and the latter should include every kind of organization working in 
the public interests. Thus the means will be jirovided wherclDy all activities 
and propaganda for the common welfare ma>- he carried out with maximum 
efficiency. 

Such an organization already has been developed for war purposes, and 
its efficiency is proof of the soundness of the general plan. The State War 
Preparedness Board furnishes administrative direction which is exercised 
through county war boards and women's committees; these in turn are 
brought into final contact with the individual citizen through community 
organizations leased upon units as small as townships, wards and school 
districts. It is self evident that this machinery', reorganized permanently 
upon a peace basis, would be equally efficient in civic activities, and it is 
no less plain that to permit such a highly develojjed organism to atrophy 
and dissipate its patriotic good would be a blunder which future years would 
not pardon. The primary duty of the Conference, therefore, is to perpetuate 



this organization and, with legishitivo aid, to establish it on a permanent 
basi.s of uscfvihiess. 

Throughout tiie whole scheme tlie guiding principle is to attain a maximum 
perfection of local organization. The community councils are the units and 
the })oints of contact with the people, and upon them flepends the success 
of the entire system. To quote from a bulletin of the Council of National 
Defense: "Community councils, furthermore, are of more than present 
value. Wise, non-]iartisan community organization is a permanent need 
of the United States. Through it can be develojjed a community conscious- 
ness and cooperative spirit that will meet many needs of our civic life. It 
A\ill provide for the ilrawing together of the various agencies at work so that 
■without interfering with the integrity of any, they will present a united 
front to community problems. It will develop an intelligent interest in 
the improvement of buildings, grounds, and streets, health, sanitation and 
welfare. It will promote community recreation • and social activity. It 
■will provide a ready contact between the community and the forces of the 
state and nation so that at any time the assistance of the communities 
can quickly lie mobilized to meet new problems." 

Such community councils, however, cannot realize their purposes without 
central supervision and direction, which will serve (1) to unify or coordinate 
all State-wide activities ; ( 2) to obtain closer cooperation with existing agencies, 
official and unofficial: and (3) to articulate State and local work with corres- 
ponding work by the federal government. 

The important features of such an organization should he: 

1. A State and community commission, large enough to represent a 
diversity of localities and interests, and thoroughly non-partisan in make up. 
Its members must, in the first instance, be commissioned by the Governor 
upon nomination l)y the Reconstruction Conference, but after the first year 
they should lie elected l>y the county community lioartls. They should 
serve without salary. 

2. The community commission should have powers broad enough to 
cover the inilependent initiation of measures, as well as cooperation with 
existing voluntary agencies, with the State and federal governments, and 
■ndth similar activities in other states. 

3. The commission should have power to adopt its own rules and pro- 
cedure; to form committees outside its membership; to give authority for 
specific purjioses to outside agencies; and to have general supervision of 
county boards. 

4. County community boards should be established in every county. 
They should be similar in character to the State commission, consisting of 
from six to ten members, according to local preference. They must at the 
outset be commissioned by the Governor, on nominations by the present 
county war boards and county units of the Woman's Committee of the 
Council of National Defense, but later should be elected by the community 
councils of the respective counties. 

5. The duties of county comnnmity l:)oards should be to cooperate wth 
the State community commission; to initiate measures of local character; 
and to promote, organize and cooperate with comnnmity coimcils. 

6. Community councils should include all local organizations, seeking 
to do common service (except political party organizations), and where such 
do not exist, or where more are needed, the count}' boards should promote 
their organization. 

7. In all the above Iwdies there should be a complete amalgamation of 



men and women workers on an approximately equal basis. The State 
coimnission and county laoards should consist of equal numbers of men and 
women. 

This committee earnestly recommends to the Conference that the Legis- 
lature be asked at this session to provide for carrying out the system alx)ve 
outlined, together with a reasonable initial appropriation for its organization 
and maintenance, which in the committee's judgment should not be less 
than ten thousand dollars. 



SOLDIERS AND SAILORS. 

The following outline of public duty toward men discharged from the 
national service is abridged from the subconmiittee report of Bishop dallagher : 

"By far the most important task which the country now faces is that of 
making, in the midst of the pursuits of civil life, a contented, ha]>iiy man of 
the returned warrior. If this happy return to peaceful pursuits be not 
accomplished, no other question now facing the countrj^ can hope for a correct 
and full answer." 

"While gone, things at home may have changed, or their absence may 
have lost for them the facility which marked their skill, or wounds may have 
disabled them to take up the work they laid aside. Charity and philan- 
thropy they have not experienced, and they <lo not look for it now. They 
seek nothing save that to which they have a right. Those who greet them 
on returning must bear this strictly in mind. The men must be taught to 
help themselves. At the ver\- gate of their return to ci^-il life, the>' must be 
shown the paths which lead immediately to independence and self-main- 
tenance." 

In carrying out this genei'al policy, immediate and effective efforts should 
be made to find employment for returning men at adequate wages the State 
can cooperate in various ways to this end. Direct steps should be taken 
through a State emjiloyment service to jilace discharged men seeldng em- 
ployment, and this is the more necessary owing to the failure of Congress 
to make the necessary appropriation to continue the Federal Employment 
Service. This service can best be rendered through the establishment of 
the commvmity organization recommended in this report, for reasons which 
will be referred to later. 

At the same time, it must be remembered that giving direct aid of this sort 
is not the only way the State can help the returned soldier to find employment. 
Anything that furnishes an additional demand for labor of any kinfl tends to 
improve the oi^portunities for labor of all other kinds; therefore, so-called 
"emergency" or "buffer" employment would benefit the jobless soldiers, 
even though none of them engaged in the particular tasks thus offered. 

This committee would not recommend any extensive resort to "buffer" 
employment, as such, Ijut its advantages can be realized to a degree through 
the immeiliate undertaking of needed public works, such as roads and neces- 
sary buildings. It should be borne in mind in this connection that the great- 
est value of such "buffer" employment is not so much to create jobs as to 
stabilize labor conditions generally. For the same reasons, it would be a 
wise permanent policy for the State to plan and carrj^ out future public im- 



9 

provements, ^^ith due regard to the labor conditions, whether such con- 
ditiojis take the form of a scarcity of labor or a scarcity of emplo>'Tnent. 

The desiral^ility of promoting the settlement of men upon farms, both 
returning soldiers and others, is generally recognized and this committee 
reconmiends that the State cooperate ^^^th the Department of the Interior, 
which has worked out a strong program in that liehalf. The unused agri- 
cultural lands in Michigan present an opportunity for important develop- 
ment through such a program. 

In according proper recognition to returning men, the patriotic impulses 
of local committees mdy well be reinforced by the positive suggestions and 
encouragement of the Conference, and of the permanent community or- 
ganization. Their reception cannot be made too cordial or enthusiastic, 
though the manner and form must be determined by local conditions, and 
the manner in which the men return. The coming Fourth of Jul}' would 
obviously be an appropriate occasion everjT\'here for special tributes to 
the nation's defenders. ■ 

A matter of more far-reaching importance is the recognition of our de- 
fenders through the erection of permanent memorials, and this committee 
would urge a strong appeal to the people throughout the State to let such 
memorials take the form, as far as possible, of community houses instead of 
mere monuments. Otherwise the people's natural imiiulse to honor those 
who fought and died \d\\ take form in a multitude of alleged works of art, 
most of them mediocre and many of them utterly tasteless. The community 
house, on the other hand, offers the opportunity not only for erecting a 
permanent memorial of worthy design, Ijut at the same time for providing 
a permanent utility to the community. Such a building would furnish a 
place for the whole community to meet for public purposes, for recreation 
or for instruction, and at the same time by its design, ornaments, inscriptions 
and mementoes, it would commemorate the heroes of the war far better than 
a lifeless monument, and fimiish far more inspiration for the generations to 
come. 

Another important matter affecting men in service is the protection of 
their legal rights, and especially such as may be affected by changes or com- 
plications in their business affairs developing during their absence. Wounded 
men and dependents of those who gave their lives should imderstand the full 
measure of pecuniary relief to which they are entitled. All insiu'ed men 
also should be counselled to keep up their government insurance and, if need 
be, aided to do so. 

To the foregoing, the coimuittee would add the following specific sug- 
gestions : 

1. That the existing county legal committees should be continued during 
the period of demobolization and their existence M'ell advertised. 

2. That county war boards or community councils see that no disabled 
man fails to take the vocational retraining which the federal board is pre- 
pared to give him. 

3. That every effort be made, through the War. Camp Community Ser- 
vice and otherAvise, to provide wholesome recreation for men in camp awaiting 
discharge, and to protect them from drink and vice. 

4. That, to prevent great waste of ]3ublic funds, as well as injustice, local 
coimcils assist the Bureau of War Risk Insurance to discover payments made 
to persons not authorized to receive them. 

5. That local councils assist in the detection of desertion, the effect of 



10 

which is demoralizing to the service, besides bringing dishonor and ]-)unish- 
mcnt upon the men who yield to such temptation. 

6. That without waiting for new organization or authorization, county 
war boards cooperate immediately with the Council of National Defense in 
measures for providing work for discharged men, as outlined in the bulletins 
of the Council. 

CONSERVATION AND HELIEF. 

This topic is broad and not clearly delimited, Ijut it includes those policies 
directed toward preventing wastage of material, mone>' and human effort, 
and with these is closely linked the pi'oblem of civilian relief. To Cjuote from 
the report of Mrs. Clay H. Hollister for the sul)-comnlittee on this topic: 

"The whole problem of reconstruction is based on conservation of effort, 
power and resources. The task of rebuilding human society after gigantic 
losses demands an equally great apjjlication of new forces, and can be accom- 
plished only if there is a minimum of wastage in meeting demands which are 
greater than ever before in the world's history. Therefore this committee 
recommends that there shall be constant and studied effort to save for the 
use of the peoi^le whatever measure of efficiency has been develojied. 

■'Without doubt we shall, for our own good, be called upon to give earnest 
and active response to the tlemand for better care of the physical welll)eing of 
all people, and in so doing we must pay greater attention than ever to the 
conservation of natural resources. 

''With more people than ever before suffering for food in Eurojie, and too 
many in this country unable to obtain proper food, the careful use of food 
stuffs should be accepted as voluntary help in conservation, with prompt 
and generous response to any nation-wide effort when asked. Until suffering 
for lack of right food has ceased to exist anywhere, there would seem no just 
reason for resumption of our pre-war habits of waste. 

"Efficiency should be aimed at through an awakened public conscience by 
reducing to a minimum the enormous wastage from fire through indifference, 
carelessness, and lack of precautionary measures. 

"For individuals, old and yomig, we recommend the deliberate cultivation 
of those habits of thrift which were hardly started when the Armistice was 
signed. 

"In all matters of community wellbeing, administered by voluntary 
agencies, we recommend closer federation for the purpose of reducing the 
unnecessary waste of time and strength in the administration of business 
common to all, such as jiublicity, campaigning and collection of funds." 

The relief of actual distress in as far as it concern the families of soldiers 
and sailors is in the hands of the Red C'ross, hut need of relief among other 
classes of persons may arise at various places, as an indirect result of war 
conditions. With the prospect of continued high prices accompanied b\' 
inrlustrial readjustment, any community may suffer at some time or (.)ther 
from the effects of unemployment. Such situations demand proper handling 
through efficient and well-guided organized effort. 

Some measure of supervision clearly should be exercised over the general 
solicitation of fimds for public purposes, and this can be had through the 
suggested community council organization. No absolute control should be 
attempted but the approval or disapproval of the State commission or 
county boards would afford sufficient guidance to the public to prevent any 
serious abuses. 



11 



UNEMPLOYMENT AND HOUSINO. 



Among the nation-wide jM-oblcms of an emergency nature, that of un- 
employment demand.s first attention. It also is the most urgent ])rol)lem 
in this State because there is a hirge surphis of unem])loyed hihor iu Michigan 
at this time. 

Fortunately this condition, which has steadily been growing more serious, 
now gives promise of imiirovement through the liquidation of war contracts 
authorized by Congress near the close of its late session. In the judgment 
of this committee the greatest single cause of unemployment has been the 
government's withholding of jiayments for goods delivered, and services 
performed under orders that lacked the proper legal formalities. In this 
way more than two billion dollars of capital was tied u]), which greatly 
hampered the readjustment of industries to peace ]>roduction. Thousands 
of manufacturers have been embarrassed, hundreds, threatened with bank- 
ruptcy, and an army of workers deprived of normal employment. Congress 
having at last taken action, the liquidation of such contracts is in progress 
and its beneficial effects will soon be felt. 

A further cause of industrial hesitation which has contributed to the same 
result has been the action of the government, notably thr<3ugh the raihoa-i 
administration, in cancelling orders for needed materials, cither from un- 
certainty as to the funds available or from motives of economy. The re- 
leasing of such orders woukl greatly aid in stimulating industry and the 
demand for labor. 

In the judgment of this committee, unemployment is likely to reach its 
peak in a few months at most, and within a year we are quite likely to have 
a shortage instead of a surphis of laljor, owing to the revival of business and 
the decrease of immigration. This fact, however, does not minimize the 
urgency of the present ])roblem, cs]jecially as regards the fm-nishing of em- 
]iloyment to men discharged from the national service, which must be dealt 
■with at once. 

Upon this ] oint, the committee ailopts the following recommendation of 
the sub-committee: 

"After studying the present machinery for placing released soldiers in 
jobs, we believe it is wrong to send them to the established employment 
agencies. The soldier is entitled to special consideration. This cannot be 
had at the hands of the Federal Employment Service, or other emplo^iiient 
agencies, without creating dissatisfaction in the minds of industrial em- 
ploj-es Slacking the same obj(>ct. We recommend that the established war 
boards take on the responsibility of jilacing returned soldiers in emplovincnt. 
It is proper that the war boards should cooperate with the (>mi3k)yment 
agencies in this work, but the responsibility should l)e placed upon the 
civilian war machine." 

The fiuestion of employment, however, has a much wider scope than the 
present emergency. The recmrent periods of lalwr surplus or shortage, the 
evils arising from an excessive labor turnover and from the imiiortation of 
labor into the State, and the hardship imposed upon workers through time 
lost in finding jobs, all call for a policy looking to permanent relief. U])on 
this aspect of the case we again quote from the able sub-committee report 
submitteil by Mr. Sovereign: 

"The problem of unemployment in Michigan is not entirely a matter of 
transition economics. The problem of unemployment is as old as industry, 
and it seems that we should take advantage of the interest created by ex- 



12 

traorclinary conditions to laj- a foundation that -vvill be permanent, and upon 
which we may build continuously a system for minimizing the recurrent 
unemployment in our State. 

"As in the case of other communities, we have in Michigan a large number 
of casual workers whose continuity of em]3loyment depends upon the facility 
with which they are able to shift from one temporary jol) to another. In 
addition to these, there is a large number of worlauen seeking to change from 
one employment to another in the same industry, or from one industry to 
another, who suffer from a period of idleness while maldng the change. 

"There is further a problem of unemployment created by the so-called 
seasonal industries, which periodically employ a large number of persons for 
a more or less certain term only. In addition to thjs there is the difficult 
problem of the building trades and such public works as road improvement, 
which by their very nature must emi;)loy for the period of each job. The 
State of Michigan presents some of these problems in a particularly acute 
form because of our resort acti\'ities, fruit gro-ning, canning, lumbering and 
those industries which depend upon the open season of our lakes, fisheries 
and navigation. 

"It is suggested that, through sonic general established body with State 
authority and of a permanent nature, a survey be made of the industries of 
Michigan, with two objects: Frrst, that casual unemployment might be 
lessened; and, Second, that the State might become self-supporting as to 
labor supply, so that there would not periodically be large importations of 
workers into the State only to become unemployed at a later date. 

"As the first object of the survey, industries should be classified and 
examined as to the volume of and charact(-r of labor employed. The analysis 
of each industry ought to show what opportunities it presents for common 
labor, for men sec^king to learn a trade, for boys and for women entering 
industry. Such an analysis ought to show, by a study of successive years, 
whether or not the industry is growing, and its location. The survey should, 
of course, be kept u\) to date by repeated revisions. 

"The second object of the survey would be to make an analysis of the 
seasonal industries, as to volume, location and nature of work, the same as 
in the case of permanent industries; but in addition each industry should be 
charted to show at what season of the year it takes on emjjloyes, how many, 
for what j^eriod they work and when they are released. Industries which 
might come under this classification woulcl be canning, fisheries, navigation, 
orchard work, park work in cities, ice cutting, the sugar beet industry, gar- 
ment making, to some extent the automobile industry, and perhaps general 
agricultural work. 

" The principal value of such a sj^stem would be to give to employers and 
employes a source of information which would enable them to lay their 
plans to obtain employment, or obtain help a few days or a few weeks, in 
advance of their actual needs; so there would not be, as at present, the usual 
unexpected cessation of emplojanent, and the ensuing two or three or perhaps 
more weeks of casting about aimlessly for another job. There is no doubt 
that those persons who are without a trade could thus furni.sh themselves 
with jjractically continuous emplojnnent by moving jjiirposefuUy from one 
form of casual employment to another throughout the year. Such a survey 
once undertaken will show a large number of seasonable or partly seasonable 
trades than anyone can anticipate, and would show in the aggregate a uni- 
formity of employment of casual help which may be reduced for the purposes 
of the State almost to an economic law. 



• "Our ])resent labor bureau system is pathetically primitive. The l)urcau 
sits in wait for the call for help and the call for a job, trusting providence that 
by some miracle the job and the jobless will arrive at the office at the same 
hour." 

This committee commends to the Conference the above plan to be em- 
bodied in a specific reconmiendation to the Legislature. 

The committee approves in jjrinciple the following suggestions from the 
sub-committee report upon housing: 

1. That the attention of the public be called to the government's urgent 
promotion of an immediate program of home building, (a) To restore the 
balance between population and housing facilities which was lost during the 
war; (b) To reduce unemployment; and (c) To stimulate innumerable lines 
of business envolved in home building. 

2. Taldng measures to acquaint the public more generally with the 
provisions and advantages of the new State housing law applying to cities 
of ten thousand and more population, and the desirability of State or local 
action to establish a minimum housing standard to all housing construction 
in the State. 

INDUSTHIAL KELATIONS. 

While manj' matters affecting labor have been touched u]x>n under the 
preceding title, another group of problems remains — those concerning the 
basic relations between capital and labor. This general question of industrial 
relations, though by no means new, has assumed unparalleled gravity be- 
cause of contlitions resulting from the war, and more especially liecause of 
the new ideas born of the war. It is not a temporary emergency like unem- 
ployment, but what we might term a lasting and growing emergency which 
will demand a solution more imperatively every day. 

Tlie sinister aspects of the existing situation have lieen talked about so 
long and so freely that we must bo on our guard against falling into that 
indifference which sometimes results from familiarity ■with danger. That we 
are "over a slumbering volcano" and that "Bolshevism is threatening to 
sweep the world" are phrases that have become commonplaces; yet no catas- 
trophe has happened. And so our traditional optimism tends to reassert 
itself, antf to persuade us that we are only victims of alarmist notions. 

But those who have been watching closely the situation, not only in Michi- 
gan but all over the country, are agreed that it is filled with grave and genuine 
danger, that all industry is threatened with demoralization if not overthrow, 
a,nd that the time has come when action must imperativel.y be taken to avert 
a catastrophe. Just what that may be, or just how or when it may come, no 
man can foretell. Nor do we need an exact forecast; it is enough that we can 
see umnistakable signs of a gathering storm. We know somewhat of the 
extent of Bolshevist propaganda in this country; we know that typical 
Russian Soviets exist at this very hour in Michigan; we know that Socialism 
is daily becoming more radical, and that new movements of a radical nature 
are starting and gaining headway. What further signals do we need to be 
admonished? 

And even these radical stirrings do not constitute the entire danger of the 
situation. They have an equally dangerous counterpart in the obstinate 
Bourbonism that at times is manifested in the workl of business. Such a 
policy of unyielding opposition might for the time being resist the waves of 
radical change; but they would only sweep forward again wdth redoubled 
power. We cannot rest safely behind a barrier of mere static resistance. 



]4 

The first and greatest truth to lie grasped is that the problem of iiidastriaf 
relations must be solved — not repressed, compromised or postponed. We 
must meet it courageously, and we must realize that it never will be solved, 
it never ^\i\\ cease to imperil us, until our social and economic structure is 
firmly founded u]3on human rights and human justice. That human rights- 
in some respects are Ijeing violated today, and human justice dehi<'d, cannot 
be gainsaid. To pretend that this is not true is to practice the most .suicidal 
kind of self-deception. It ccjually is folly to hope that reform can be attained 
Avithout abridging some of the advantages so long enjoyed by the conservative 
interests of society. Much must be yielded, much renounced — not merely 
to purchase peace and safety, but to fulfill the moral commandments which 
a righteous people must heed, anrl which alone can bring us lasting peace and 
safety. 

Merely to enumerate some of the features of this situation which are, or 
are likely to become, practical i.ssues is enough to indicate the fundamental 
nature of the problem. The right to collective bargaining, the minimum 
wage, the dismissal wage, the representation of labor in factory management, 
workmen's compensation, social insurance, the working day, women in in- 
dustry — these are some, but not all, of the matters that are already the sub- 
ject of .study, debate and controversy. 

This committee would deem it ]iremature and presumptuous to recommend 
definite policies or .specific action upon these problems, Init will confine itself 
to a single recommendation, representing the conclusions of the al)le sub- 
committee after earnest consideration. 

It is recommended that there be established immediately by law an in- 
tlustrial relations commission of at least seven persons, well (jualified In- 
experience and judgment, who are not radical or extreme in their views ujion 
any of the subjects they will be called upon to deal with. The duty of this 
commission would be to ascertain what conditions call for remedy and to 
recommend to the Legislature such laws or policies as seem advisable to 
promote industrial jieace and justice. 

The first and most important step to this end woukl be for such commission 
to make a comprehensive inquiry into the industrial situation in Michigan, 
including the causes of industrial unrest and unemployment, the lalror 
turnover and its causes, wages and living conditions, and the jjosition of 
women in industry. This commission should be given ample authority', 
including the power t(j take testimony and to compel the attendance of 
witnesses and suitable approi^riation for its expenses. Its report should be 
made to the Governor, who should transmit it to the Legislature with his^ 
recommendations. 

Meanwhile, without waiting for such a survey or for any legislative action, 
this committee urges that steps be taken through the comnnuiity organiza- 
tion to promote meetings in all industrial centers at which emjjloyer and 
employe may be brought together for conference, where nothing is hidden 
but all matters are laid upon the table to be discussed fairly and candidly. 
One such conference has already been held at the instance of Chairman 
Young of the sul)-committee, who also has discussed the subject with a num- 
ber of the largest emjjloyers of the state, and he rejiorts the results of such 
meetings as very helpful and encouraging. 

Such conferences, together with the various activities of community councils 
and other local agencies, can make substantial headway in promoting all 
measures for industrial betterment. It is to the Legislature, however, aided 
by an industrial commission that wc must look for comprehensive solution 



15 

of the entiro problem, which should aim at nothing less than the removal 
of all conditions incompatilile with the welfare and o])portunities of the 
working peo])lc of Michigan. 

AMERICANIZATION. 

Closely allietl with the general subjects of labor and industrial relations 
is the problem of Americanizing the large alien element of our population. 
This is equally necessary whether viewed from the standpoint of political 
and social security, or from the standpoint of conservation and efficiency. 

Allusion has already been made to the astonishing number of adults who 
can neither reatl or write the English language, as disclosed by the examina- 
tions conducted in the army. This condition of alienage, in speech and 
thought, is aggravated by the further fact that a large proportion of those 
ignorant of English are also unable to read or write in any other language. 

The presence of such an element, which actually outnumbers the entire 
population of fifteen states, is an obvious peril to our security and a serious 
offset to the intelligent thought and action of our more enlightened citizen- 
ship. Such jjersons readily fall victims to un-American propaganda con- 
ducted by foreign agitators, and they are isolated from countervailing in- 
fluences, whether of information, argument or warning. At the same time 
the lower social and economic position which their ignorance forces upon 
them tends to increase their unrest and incite them to disturbing activities. 

The education of this great class presents perhaps the greatest single 
reclamation and conservation jiroject ever broached. It is estimated by 
the Department of the Interior that the Americanization would increase the 
earning power of our alien and illiterate workers by an average of five dollars 
a week, oi' aljout two Ijillion dollars a year. The interest of this sum w(juld 
alone be much more than sufficient to effect their Americanization. 

To ]iromote tliis process a measure known as the Smith-Bankhead bill 
was introduced at the recent session of Congress, in identical form in the 
Senate and House, which is approved as follows in the report of Bishoj) 
Williams on behalf of the sub-committee on Americanization: 

"We heartily indorse the Smith-Bankhead l>ill (Senate l)ill 5464, House bill 
15402). This liill provides for a general program of Americanization to be 
carried out under the supervision of the Secretary of the Interior, makes 
adequate appropriation for such program, and proviiles that the appropria- 
tion shall be shared with the various states in proportion of the rate of their 
illiteracy to the general illiteracy of the union, on condition that each state, 
in order to receive an approiiriation, accept the plan, make an appropriation 
for the work equivalent to the quota received from the general government, 
and submit its jilans of education and Americanization to the apjiroval of 
the Department of the Interior. We not only heartily endorse and recom- 
mend the passage of this bill, but in case it passes we urge upon the Legis- 
lature of ^lichigan the passage of such legislation as is necessary for co- 
operation in this jilan." 

Inasmuch, however, as the bill did not pass at the recent session, and is 
likely to meet with indefi)iite delay, this committee woukl recommend that 
the vState i)roceed independently wth a similar program of Americanization 
and education of illiterates. This program should be made effective by 
projjer legislation to provide the necessary instruction. At the same time 
a very \'aluable auxiliary service could be rendered through the proposed 
State communitv commission, boards, and councils which should carry ou 



16 

a campaign of publicity as to the need and value of such adult education 
and Americanization, and to stimulate interest in the work. 

The Department of the Interior has already worked out a strong program 
of action through its new division of Americanization. The Bureau of 
Naturalization also is conducting a valuable work in training for citizenship 
those who have taken out first papers. The proposed community orgajiiza- 
tion will make possible a close coordination of such federal work with state 
and local activities. 

EDUCATION. 

The subject of illiteracy, as it comes within the purview of the Smith- 
Banldicad Bill already discussed, is a problem of an iminediate nature. The 
subject of education, however, presents other phases which, though less 
exigent, are nevertheless intimately involved ■with the proper development 
of citizensliip. 

The State of IMichigan has enjoyed a high standing as regards public 
education, but for that verj'^ reason this State should be among the first to 
recognize new demands and opportmiities in the educational field, and meet 
them with clear insight and liberality. 

The first step in the improvement of ovu' educational systcna is to eliminate 
completely the un-American influences that are inherent in foreign language 
instruction. Foreign languages should be taught in the higher courses of 
study to those who desire them for their cultural value, or for some special 
practical purpose; Init they should not be taught in the jjrimary grades, 
and still less should we tolerate primarj- instruction carried on in any foreign 
language as a vernacular. This committee, therefore, earnestly approves 
and recommends the immediate passage of a law that will forbid instruction 
to be carried on in the first eight grades in any language but English in any 
school, whether jjublic or other, and that such change be made effective 
either at once or after a short transition period not exceeding at most two 
years. 

As far as tlie eduction of illiterates and the teaching of English to aliens 
is concerned, this report already has recommended a State program similar 
to that of the Department of the Interior, to be started at once, and State 
cooperation with the same Department under the Smith-Bankhead Bill if 
that bill becomes a law. The principle of education among adidts, however, 
should be carried further through night schools, and positive effort should 
be made to bring such instruction to the attention of those who need it, 
and persuade them to avail themselves of it. 

University extension courses also offer a great opportunity for dissem- 
inating more advanced education and making our great University 'b more 
valuable asset to the State. This committee recommends that conmnunity 
councils urge the establishment of such courses in their cities and villages, 
to be carried out under the direction of local lioards of education. 

Recognizing that physical and moral training are integral parts of a proper 
educational system, this committee recommends that a regular and com- 
pulsory system of physical exercise be established in the public schools, 
to such an extent and in such grades as the Department of Public Instruction 
may determine. 

It is further recommended that ethical and moral teaching be made a part 
of the school curriculum. 

While the general improvement of the State's educational system is not 
immediately within the province of this committee or the Conference, yet 



17 

it is so intimatelj' connectetl with the general subject of human efficiency 
and public welfare that this committee feels justified in adopting the follow- 
ing general recommendations from the report of its sub-committee: 

1. That higher salaries be paid to teachers and superintendents, 
particularly in the smaller to-mis and the lower grades, and to this end we 
commend the consolidation of rural schools. 

2. That more attention should be paid in rural schools to heating, lighting, 
ventilation and sanitation. 

3. The extension of courses in domestic science, civics, and manual and 
vocational training. 

4. Health examination of pujMls by physicians and nm-ses, and the 
appomtment of visiting nurses. 

5. The increased use of schoolhouses as community centers. 

6. That a substantial number of scholarships. to the University, normal 
schools and Agricultural College be provided from state funds, that no child 
may from want of means be deprived of the higher education which the state 
has so abundantly provided for. 

7. That free text books be provided in all schools. 

8. That educational methods in all charitable and correctional iiistitutions 
be brought uji to the most approved modern standards. 

A FEDERAL DEPARTMENT OF EDUCATION. 

This committee ajjuroves in principle the measure introduced in the last 
Congress, known as Senate Bill 4987, pro\iding for a federal department of 
education with an annual appropriation of $100,000,000, to be allocated to 
the various states, for the removal of illiteracy, for Americanization, and oth- 
er specified branches of educational work. Michigan's total allotment under 
these heads would amount to $3,170,697, the money to become available 
as rapidl.v as like sums are expended for the same purposes by State or local 
authorities. 

This committee does not specifically recommentl the passage of this 
particular bill because it appears in part to overlap the program contemplated 
by the Smith-Bankhcad liill for Americanization and the removal of illiteracy, 
and the two measures are likely to be later harmonized. The activities 
Avhich the bill is designed to promote, however, are such as should commend 
themselves to the State independent of federal aid or encouragement. 

HEALTH AND CHILD WELFARE. 

The report of Mrs. Crane for the sub-committee on this tojiic is adopted 
by this committee as follows: 

"The war lias demonstrated many points of national weakness, ilue to 
neglect of public health, especially in that vast numbers of men called to 
the military service of their country have been rejected for disabilities clearly 
due to neglect of their welfare during childhood. Official statistics show 
that for every soldier of ours who lost his life abroad nine children under 
five years of age died in this ccnmtry, and the greater niunbcrof these children 
died from jjreventable causes. 

"In view of these facts, this committee believes that the jiromotion of 
public health and child welfare is the most fundamental and enduring ol)liga- 
tion of a state to its people, and a condition precedent to its greatest national 
strength, wealth, efficiency and character in peace as in war. The committee 



18 

therefore recommentls the following measures in legislation and in voluntary 
state-wide and community eflfort. 

"The committee recommends that the State Legislature at its present 
session be urged by the Reconstruction Conference to enact into law the 
following bills which have the approval of the State Board of Health, The 
State Conference of Social Work and the Michigan Board of the American 
Red Cross: 

"1. A l)ill providing hn- full-time, full-pay health officers in all counties. 

"2. A bill for reorganization of the State Board of Health. 

"The committee recommends the following bills which have the endorse- 
ment of the State Conference of Social Work and the Statp Board of Health: 

"3. A liill providing for apjiointment and removal of county agents, by 
the State Board of Corrections antl Charities, and increasing the pav of 
county agents from .13.00 to •'S.5.00 ])er flay. 

"4. A bill giving the State Board of ( '(jrrections and ( 'harities more power 
in licensing and supervising boarding homes for children. 

"5. A bill for removing the Boys' State Industrial School to the country. 

"6. A bill for better care of the sub-normal children, using the Cold- 
water School for such exclusive purpose. 

"The above bills are considered by this committee to be basic measures 
for the jjromotion of public health and the proper care of State's dependent 
and delinquent children. 

"This committee most heartily endorses the health and child welfare 
programs now being carried out jointly l)y the Federal Children's Bureau 
and the Woman's Committee Council of National Defense; by the United 
States Public Health Service, by the I'nited States Bureau of Education: 
by the War Savings Bureau of the I'nited States Treasury Department and 
by the American Red Cross, all working through or in connection with the 
public schools, and with the active cooperation of such other ini])ortant 
agencies as the general Federation of Women's Clubs and the Parent-Teachers' 
Association of America. The committee also recommends a Federal Agency 
of Child Welfare with scope, power and funds largely in excess of those now 
allowed the Federal Children's Bureau. 

"All the above nation-wide programs indicate a well-defined movement 
toward building up a program of iiublir health and child welfare as univesral 
and as solidly grounded as is oiu- i)rogram of jniblic education. 

"For all undertakings of om- own State Departments of Kducation and 
of Health, our State Child Welfare Commission and similar State agencies, 
the committee urges the moral anil financial support of all our people, not 
only as the inherent right of the children in the charge of our generation, 
but as the best possible insurance for the future of our State and of our 
country. 

"The committee calls to the attention of all comnuniities the duty of loca' 
initiative in fully providing for iniblic health, sanitatiim, and wholesome 
supervised recreation, and the establishment of child health and welfare 
centers in all communities; and urges that through rural comnnuiity effort 
the educational advantages and recreational opportunities in the country 
districts be brought up to a par with those enjoyed in the cities. 

"The Federal Children's Bureau n>ports wide-spread and serious malnu- 
trition among children of both school and pre-school age, and calls attention 
to the fact that jirolonged undernourishment of children works an irreimrable 



19 

injury to them, and hence to the nation. In view of the fact that a very large 
number of children suffer especially from lack of milk, as already (lemon- 
strated in some of our Michigan cities, the committee recommends that eacli 
eonununity ascertain what the milk situation is and whether it is l)eing met. 
Where it proves necessary commimities are urgetl to tlevise some jilan for 
furnishing milk to needy families at cost. 

"The committee believes that a factor of supreme importance in child 
welfare is the care of the mother. The committee therefore urges the im- 
])ortance of such state and local action as shall, by pension or otherwise, 
free all bread-winning mothers of young children from the outside burden 
and permit them to devote their energies to the care and nurture of their 
children in the home. 

"The committee favors the plan advocated by the Federal Children's 
Bureau for jiroviding scholarships from pul)lic school funds, or from other 
public or private sources, which will enable needy but diligent and promising 
]5upils to remain in school beyond the minimum period specified by our 
compulsory education law. The committee believes this to be to the ad- 
^'antage of society at large, inasmuch as it develops intelligence and power 
for useful citizenshiji and may develop genius of an order to greath' benefit 
mankind." 

In addition to the foregoing fundamental aspects of the sul>ject of jiublic 
health, there are certain considerations of a timely nature arising from war 
conditions, or lirought to light thereliy. One of these is the increa.sed hazard 
to health resulting from war conditions. 

This abnormal hazard arises from the demobolization, which shifts and 
intermingles individuals in extraordinary numbers and from unwonted 
distances; the concentration of large numbers of men at military points; 
the possibility of introducing new diseases on an epidemic scale from Europe 
and Asia as e.xemplified by the spread of influenza; and the increased price 
of food, which produces malnutrition and lowers resistance to disease. All 
the conditions call for increased vigilance, more efficient methods, popular 
enlightenment on public health matters, and organized preparedness to 
cope with emergencies. 

The striking revelations as to extent of venereal diseases, and the encourag- 
ing success of the government in combatting them, are matters of common 
knowledge. Michigan's record of success and leadership in that matter 
is so noteworthy as to impose an obligation upon the state not only to keep 
up its efforts but to reclouble them. This committee therefore strongly 
commends the action already taken by the State War Preparedness Board 
in this direction, and without specifically endorsing any pending measures 
urges liberal support bj' the Legislature for continued and increased effort, 
not only in civilian communities near military points hut throughout the 
state. Local comnmnity councils can lend invaluable aid through education, 
l^romoting wholesome recreation and law enforcement, and cooperating 
in other ways with state and federal health authorities. 

AGRICULTURE. 

Xo program of reconstruction could succeed without clue regard to the 
needs of agriculture, the greatest interest in the state and the one most 
fundamental to human existence. The problems touching agriculture are 
commonly r(>garded as less urgent than those toucliing industrial relations, 
and in a sense that is true. They are less urgent in the sense that failure to 



20 

solve them does not threaten such sudden and calamitous results; but their 
importance is no less, and in the long run they demand an answer with equal 
insistence. 

One source of the farmer's troubles, as in the case of the industrial worker, 
lies in the fact that he has to a certain degree been the victim of exploitation 
at the hands of others. The workingman's grievance arises dircctlj' out of 
his dealings with his employer, but the farmer suffers from exjjloitation not 
by those who consume his products but by the various middlemen and 
intermediary agencies whereliy his products reach the consumer. Thus his 
returns are not governed by the normal process of supply and demand, but 
are determined by the presence or absence of competition among middlemen, 
and by the capricious action of manijiulators whose interests are adverse to 
those of both the producer and the consumer. 

Another handicap to agriculture is the fact that, unlike any manufacturing 
industry, the cost of production does not determine the selling jirice. This 
peculiar result is due partly to the fact that few farmers know what their ovm 
costs of production are. Furthermore one farmer's production cost differs 
from another's, owing to differences in soil and capital investment, although 
all sell in the same market. Finally the average costs of one section of the 
State or country differ from those of another, owing to conditions of climate, 
transportation and other causes. Meanwhile, though each farm enterprise 
is conducted as an isolated unit, the farmer sells in a common market and takes 
whatever the market price may happen to be, that price being the resultant 
of various conditions everywhere. Thereby the farmer assumes not only 
the hazards of his own business but the hazards of other farmers, other 
sections, other states and even other countries. Lacking a collective selling 
organization strong enough to dominate the market, and also lacking proper 
guidance in the choice of crops with i-egard to production elsewhere, the 
farmer has to face an abnormally high factor of chance. 

These being the chief handicaps to agriculture, the way toward rc^lief is 
clearly pointed out. Relief against exploitation is available through im- 
proved marketing facilities, and this subject forms a salient feature of farmers' 
discussions everywhere, and of their political activities in certain states. 
The feasibility of such improvements and reforms is already proved by the 
success of various cooperative associations of producers — some of them, 
like the California Fruit Growers' Exchange being of great magnitude — and 
also by the positive results attained through govermnental food control 
during the war. 

There seems to be no inhibition upon such cooperative efforts in Michigan. 
They can be organized under three different laws, and developed greatly 
without any further enabling legislation. This already has been undertaken 
successfully by producers of milk, live stock, potatoes and other products. 
By this means advantages could also be realized through the development 
of standard brands, such as the Dairy and Food department already has 
encom'aged. In these matters the initiative rests with the producers, and 
the extent of such cooperative plans will be largely a matter of education 
and organization among the farmers themselves. With apjjroximately 
207,000 farmers in the state, cooperative enterprises could be carried out 
upon a very large scale. 

The State has undertaken positive aid in improving market conditions 
through the office of a market director, acting under the authority of the 
Board of Agriculture, which is given power to give him as many assistants 
as may be required. The functions of the director, as stated in Act 91 of 



the laws of 1915, include the power to investigate production and marketing; 
to assist in organizing cooperative and other associations of farmers and hel]) 
them in their work; to give information to producers on market conditions 
in other states; and to coojierate with the federal Department of Agric\iltnre 
in investigations, in organization, and in the shipping, storage and sale of 
products. Numerous other ])owers are given the director, including the 
publication of bulletins on market conditions, advertising the names of 
producers, distributors and consumers, and even the power to establish 
auction markets. He is further authorized to investigate and report short- 
comings in transportation and violations of law, and is given broad power 
to prevent waste of perishable products. 

With such an office already established, it would seem that Michigan was 
already in ])ossession of an effective instrument for dealing with marketing 
problems, virtually equivalent to the marketing commissions of other states, 
and able to cooperate fully with the marketing division of the federal De- 
partment of Agricultm'e. Apparently, however, the possibilities of this law _ 
have been very imperfectly developed, and even the office itself is now vacant, 
the director having resigned. 

This result, in tlie committee's judgment, is due largely to the fact that 
the office of market director, though abundantly endowed with legal powers, 
is not placed upon a basis of administrative efficiency by reason of the fact 
that it is attached to the Board of Agriculture which board is empowered to 
"direct and control the purposes of this act," to api^oint the director, and to 
fix his comjjensation and that of his assistants. The committee believes that 
the purposes of the act will not be realized until the office of market director 
is given an independent status. 

This committee therefore recommends that the Legislature be asked to 
separate the office of market director from the Board of Agriculture, and to 
give it sufficiently liberal support that its work may be developed to the 
fullest extent under the powers already conferred by law. 

The subject of production costs, already alluded to, is no less important 
than marketing. Without some definite basis of costs to serve as a basis 
for market values, the inevitable results Vvdll be discontent, the decline of 
agriculture and the dejiletion of the soil. A great advance can be made by 
investigating and ascertaining production costs, distributing information 
thus obtained, awakening the interest of farmers to its vital importance, 
stimulating more efficient methods of j^roduction, and incidentally pro- 
moting the more general use of proper accounting methods. Proper prices, 
when thus ascertained, cannot be established by any compulsory process, 
but the mere publication of such prices, and their general knowledge by 
producers and consumers, -wdll have a very strong influence. This was 
shown, as regards retail distribution during the war, through the publication 
of lists of "fair prices" at the instance of the federal food control. 

All the foregoing suggestions can be carried out as fully as may be desired 
through the office of market director. 

The key to the general problem of the imj^rovement and relief of agi'i- 
culture in Michigan seems to be found in an awakening of the farmer himself, 
and of the existing State agencies that already have been created to serve 
him. The desired services can be had if they are demanded, and the possi- 
bihties of self-help through cooperative action are almost without limit. 
The latter should be encouraged through the State and local community 
organization, and by all other educational means, for it answers the demands 
of socialistic theorists \\'ithout inyiting the dangers of a socialized state. 



The general aspect of a sound State policy regarding agriculture is con- 
tained in the following passage from the able report recently made to the 
Wisconsin legislature hy the joint legislative committee on reconstruction: 

"The welfare of the jieople of the state, \u'ban as well as rural, can best 
be promoted by the sound jihilosophy of cooperation which has heretofore 
characterized our farmers' organizations, rather than by tlie unsound disin- 
tegrating philosojihy of socialism. \\'hat we need to do is not to have the 
State o^\'n everything, but on the contrary to increase, to the widest extent 
possible, ownership by individuals of the wealth and instrumentahties of 
production. A state having its wealth widely distributed among its citizens 
and its citizens organized cooperatively to carry on at least most of its 
economic enterprises, is on the road to that happy condition which promotes 
the greatest good to the greatest numlier. Instead of the socialistic state, 
we must work and fight for a state with widely distributed individual owner- 
ship and organized cooperation." 

PUBLICITY AND MOR.\LE. 

Publicity is only a means to an end, but its possibilities have been so 
surprisingly unfolded during the war that it has accjuired a substantive value 
of its own. 

In every war-time activity publicity was an auxiliary of suljstantial value, 
and in many cases it furnished the driving force without which success would 
have been impossible. The press, the platform, the Four Minute Men, 
moving pictures, posters and many other forms of publicity were used with 
immense success for all sorts of war-time purposes. The same agencies can 
be invoked for civic ends in time of peace, anil they will prove equally effec- 
tive. Obviously the technique of such publicity campaigns should not be 
allowed to become a lost art, but should be kept alive and up to date., hke 
the plans of an army staff, so that the agencies of publicity can immediately 
be mobilized for any purjiose. 

There is a negative aspect to this subject which also is of great moment, 
for it is important to prevent or offset misguided puljlicity. In this direction 
the people of the State, acting through disinterested channels, can exert a 
wholesome and corrective influence. An example of such misguided pub- 
licity is often seen in the wholesale condemnation of reform movements 
without discriminating between legitimate agitation and destructive radical- 
ism. We are probably cutering upon a long period of agitation, reforms and 
readjustments, during which the public eye and ear mvist be ojien, and the 
public mind in a receptive and tolerant attitude. Nothing is more dis- 
couraging to constructive reformers than to be met l\v a s])irit of unreasoning 
chauvinism which classes them off-hand as dangerous citizens. Ekjually 
detrimental is the failure of the press to accord a proper measure of pub- 
licity to legitimate movements and propaganda, whether it proceed from 
conservative prejudice or from mere failure to recognize the facts. 

It would be a dangerous experiment for any organization having an official 
status, however representative it might be, to attempt to mould the utterances 
of the press; but nevertheless a state\\ide system of comnumity councils, 
with all its affiliated organizations and individual workers, could do much 
toward creating a pro])er state of ])ul)lic opinion, which in turn would in- 
fallibly find proper expression through the ordinary channels. 

The war has shown us the value of morale, and its importance by no means 
ceases with the coming of peace. ^Morale is as vital to the world of business, 
industry and labor, as it is to an army. Conditions of uncertainty and 



23 

depression often resolve themselves into a mere state of mind which is cured 
when, as we say, "confidence is restored." Publicity is the quickest and 
surest way of restoring morale in such circumstances, by removing unfounded 
suspicions, correcting wrong impressions, and encouraging a normal optimisn. 
All these principles are recognized in the federal departments, which make 
very extensive use of publicity in many forms. Much of this effort is wasted 
because of its Yery profuseness, and from the lack of proper machinery in 
the states to receive and use it to advantage. A proper office of publicity 
in each state could receive such matter, appraise it in the light of local con- 
ditions through the state, and make valuable use of such portions as might 
be applicable and helpful. This committee therefore recommends that, if a 
State communitj' organization be established, it provide a publicity service 
for this purpose in charge of a suitable agent at Lansing, who would have 
access to all branches of the State government as well as all channels of 
publicity in the State. In this way Michigan ^\-ould be kept more fully 
in touch ^\^th the actixaties of other states and of the national government, 
and ^\•ould receive the maximum benefit from the elaborate and valuable 
publicity service at Washington. 

BUSINESS READJUSTMENT. 

The world of business is concerned with many new problems and changes 
resulting directly or indirecth' from the war. These, excepting such as 
already have been referred to, are mostly matters of readjustment rather 
than of reconstruction, and to a large decree they will adjust themselves. 
Such questions as changes in business methods, trade acceptances, standard- 
ization of products to eliminate wasteful competition, insurance, pubhc 
utilities and trans)3ortation methods, are matters to be dealt Avith through 
the usual and normal processes voluntary action, agreement and legislation. 

It is opportune, however, just now to call attention to the special importance 
of motor transportation, which is de^■eloping rapidly and the possibilities 
of which are almost without limit. Through military operations we have 
learned the immense possibilities of highway transportation, and this knowl- 
edge is reflected in the extensive programs of road building now under way 
in many states. It is not a rash forecast to predict that the motor truck 
will ultimately handle a volume of traffic comparable in many localities to 
that carried by rail, and that it vriW affect life and business more than any 
other factor since the close of the great period of railroad building that 
followed the civil war. 

Michigan already has got into step with this great movement by initiating 
a program of road improvement, and no time should be lost in preijaring 
to utilize these new facilities to the utmost for the general welfare of the 
State. It cannot be too strongly emphasized that the development of high- 
way transportation involves more than mere road building. It involves 
the projDer working out of new methods on a comprehensive scale, having a 
view not merely to state-wide needs but to interstate relations. The system 
of trunk highways now contemplated is directly in line A^nth this principle 
and this committee approves the plan. ]Meantime steps should be taken 
to encourage rural motor express lines, and the establishment of return-load 
bureaus to increase the economy and efficiency of such transportation. 

The proposed community organization cooperating ^\^th commerical 
bodies and other agencies, and the highways transport committee of the 
Council of National Defense, can render substantial ser\ice in this direction. 



RECAPITULATION. 

Owing to the magnitude of its assignment, this committee's report is 
long and covers many matters which the Conference will not take up; though 
it is hoped that all parts of the report may have some suggestive value. 
For the convenience of the Conference, a summary is herewith presented 
enumerating the various suggestions and recommendations and emphasizing 
those upon w'hich the committee would urge definite action. 



RECAPITULATION. 

ORGANIZATION. 

1. That the Conference urgently recommend to the Legislature a law 
providing for a system of State, coimty and community councils. 

SOLDIERS AND SAILORS. 

2. That the State cooperate with the Department of th(- Interior in: 
providing farms for returned soldiers and others desiring land. 

3. That the Conference recommend construction of needed public 
works to furnish immediate employment. 

4. That this Conference strongh' recommend to the public the erection 
of community houses, or similar useful structures, as memorials to the nation's- 
defenders, in preference to mere monuments. 

5. That existing county legal committees be continued during the full 
period of demobolization. 

6. That county war lioards try to make sure that disabled men take 
the vocational retraining provided liy the government. 

7. That every effort be made to provide recreation for men still in 
service and to protect them from drink and vice. 

8. That local war boards and councils assist the government in detecting: 
payment of insurance and allowances to those not entitled to receive them. 

9. That local war boards and councils assist in the detection and pre- 
vention of desertion. 

CONSERVATION AND RELIEF. 

10. That this Conference commeml the cultivation of thrift and savings 
investments. 

11. That the Conference recommend a closer federation of all voluntary 
agencies working for the public welfare. 

EMPLOYMENT AND HOUSING. 

12. That the existing war boards should act immediately, and cooperate 
with the government, in measures to provide work for discharged s(.)ldiers 
and sailors. 

13. That the Conference approves of the present federal and local cam- 
paigns to encourage all forms of building. 

14. That the Conference recommend a general survey of all industries^ 
by State authority, as outlined in the report of the subcommittee on employ- 



25 

ment and hoiisin";, to develiiiK' iicrnuiiu'nt policies and mcthoils tVir reducing 
uiiem]iloyment. 

15. Tluit State and local counciU 1*> recommentled to acquaint the public 
-with the provisions of the State housing law antl to encourage the estabhsh- 
ment of housing standards for all house construction. 

INDUSTRIAL REL.\TIONS. 

16. That the Conference recommend to the Legislature the immediate 
establishment by law of an industrial relations commission. . 

17. Tliat conferesices of employers and employees be encouraged Ijy 
local war boards and other local organizations. 

.■VMERIC.-VNIZ.^TION. 

18. That the Conference indorse the Smith-Bankliead bill for .\merican- 
ization and the removal of illiteracy. 

19. That the Conference recommend that the State, without waiting 
for fivleral action, proceed at once with a program for the same purposes 
contempbted in the Smith-Bankhead bill, and cooperate with the work of 
the Department of the Interior in that line. 

20. Tliat the State and community councils jjromote a campaign of 
publicity as to the need of adult education anil Americanization. 

EDUCATION. ■ 

21. That the Conference recommend legislation requiring all instruction 
to be in the English language up to and including the eighth grade in all 
schools, public and private. 

22. That State and commimity coimcils encourage the education of 
adults through night schools. 

23. That the Conference apjirove the development university extension 
and that the State and community councils promote it. 

24. That regular and compulsory physical training be required in all 
public schools. 

25. That ethical and moral teaching be required in public schools. 

26. That the Conference approve of higher salaries for teachers; better 
schoolhouse accommodations; extension of domestic science, manual and 
vocational training; health examination of pupils; free state scholarships; 
free elementary textbooks in all schools; modern methods in charitalile 
and correctional institutions. 

27. The committee approves in principle, Senate Bill 4987 providing for 
a federal department of education. 

HEALTH AND CHILD WELFARE. 

28. That the Conference recommend the pending Ijill, jiaid health officers 
in all counties and for a reorganization of the state Ijoard of health. 

29. The committee approves pending bills for the appointment and 
removal of county agents; licensing and supervising boarding homes for 
children ; to abolish the State public school at Coldwater ; to remove the Boys' 
Industrial School to the country; for better care of the feeble minded. 

30. The committee indorses the child welfare programs now being carried 
out jointly by various agencies. 



26 

31. The committee favors the principle of free scholarships to enable 
needy children to pursue school studies beyond the minimum period specified 
by law. 

32. That the Conference strongly commend the campaign against venereal 
diseases and urge liberal legislative support for its continuation. 

AGRICULTURE. 

33. That the Conference recommend the encouragement of cooperative 
organization among farmers. 

34. That the Conference recommend that the work of the State market 
director be developed and adequately financed, and 'that it be separated 
entirely from the State Board of Agriculture. 

35. That all jiossible steps be taken to ascertain farm production costs 
and to distribute information based thereon. 

PUBLICITY AND MORALE. 

36. That the State community commission maintain a publicity agent 
at Lansing. 

37. That the (.Conference approve the bond issue for good roads, and 
recommend immediate steps by the proper state authorities to develop high- 
way motor transportation. 



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